Your .obf is empty because the .osm isn't tagged according the the OpenStreetMap system to say what things are. If you open the .osm in JOSM, select-all, and add the tags boundary=administrative and admin_level=* as described
here, then OsmAndMapCreator successfully generates .obf from that. But doing it this way, OsmAnd just combines this new map data with what the main map files are telling it, and uses its rendering rules to decide how to display everything. Unfortunately, your new boundaries lie on city streets and it seems that whatever admin_level you set, the rendering rules will show the street not the boundary. You can see the new boundaries if you disable the main map file, but this is no use.
AFAIK, OsmAnd's "overlay" feature only works for tile maps (a hierarchy of folders containing small image files). There are free tools to generate those too. However, depending on your objectives, would it be acceptable just to have your boundaries as a .gpx track? JOSM, select-all, save as .gpx generates the attached file. Put in OsmAnd;s tracks folder, you can use OsmAnd's menus to turn it on and off, display it in various widths and colours on the map, eg:

BTW, if you load that .gpx into the excellent
GPS Visualizer site, you can see that even though I just did "select-all" in JOSM, the .gpx preserves the individual areas:
